Monday, March 19, 2012 - 6:41 AM

By Capt. Rosemary Mariner, USN (Ret.)
Best Defense guest columnist
Tom posed the question of why are we so bad at command and control? Because they are intrinsically political, I doubt it is possible to have a "good" combined command structure in limited coalition wars. Civilian command and NATO demands during the Korean War (under the auspices of the United Nations with U.S. President Truman designated the executive agent) drove MacArthur nuts. One reason Vietnam C2 looked suspect was that MACV had to at least keep up appearances that the South Vietnamese government was in charge of something. Undeclared limited wars, especially as part of ad-hoc coalitions or even formal alliances, are inherently difficult to command or control.
Nor is this just a limited war problem. The WW I command structure was a deliberate attempt to keep the American Expeditionary Force from being used as replacement cannon fodder (amalgamation) for the Allies. After Congress declared it, Wilson took the country to war as an "associate power" so America could perform an independent military role in defeating the central powers, thus enabling it to play a major part in shaping the post-war world. Pershing understood his marching orders. From a pure military viewpoint, this made little sense. Conflicts with WW II divided command structure in the Pacific (in no small part to appease MacArthur) drove many of the post-war unification debates and ultimately the National Security Act of 1947. The whole "jointness" thing was never simply about the services working together. It is about statutory centralized command and control, ergo the unified command structure.
Given the huge challenges of coalition warfare operating under U.N. resolutions, command and control in the Gulf War was a big success story. Operation Desert Storm, the first major post-Vietnam and post-Goldwater Nichols Act military operation, allowed CINCCENT the advantage of a clear war aim to eject the Iraqis from Kuwait. (According to Schwarzkopf's 1992 autobiography, going to Baghdad "to finish the job" was never considered. Coalition and allied support was only to liberate Kuwait. Had we taken all of Iraq, we would have been "like the dinosaur in the tar pit," still there, by ourselves, years later.) The Joint and Combined Command structure had problems, but it worked.
Perspective wise, if "military efficiency" were the yardstick, then we would have the German/Prussian General Staff. As a republic, military efficiency has never been the primary driver, much to the chagrin of Emory Upton and folks unfamiliar with the reasons behind America's long standing distrust of professional armies evident in Article I of the U.S. constitution. This document gives the president and Congress control of all things military, including command structures. The generals advise, not decide. Like others, I get frustrated when C2 issues are framed as strictly military problems while ignoring the fact that the armed forces are wisely under civilian command. And I'm not an apologist for generals; under civilian control of the military, vertical accountability extends to our civilian masters.
Rosemary Mariner is a scholar-in-residence at the University of Tennessee's Center for the Study of War and Society. Prior to retirement, she served as the CJCS Professor of Military Studies at the National War College.
The only example of successful military-political integration which allowed both sides to achieve their goals CAPT Mariner could come up with was the Prussians?
But in principle I agree-popular government and efficient decision-making in foreign policy are mutually exclusive. Domestic policy, btw, is no better-see Detroit. So, now what?
if "military efficiency" were the yardstick...
... the misguided German/Prussian general staff would have put the Kaiser under house arrest, and succeeded in killing Hitler, Goebels, Himmler et al.
Instead, Germany was ruined in the 'great' war, and suffered destruction of a biblical/Roman quality (and unprecedented quantity) in the 'good' war. Field Marshal Paulus finally got it, enlisting with the Russians after his Fu**er needlessly sacrificed a whole army, 700,000+ casualties. Paulus' cohort had misunderstood the kind of war he had been fighting, violating St. Carl's rule 1. 'Hustling Heinz' Guderian never did get it; a model of energetic inefficiency, digging the hole deeper until both E. Prussia and Konigsberg ceased to exist as German speaking states, and then focussing on temporary tactical successes in his memoir.
Just sayin... the 'military efficiency' that anointed our General Groves a nuclear czar, leaving the new President Truman treading unplumbed intellectual and strategic water in the dark, in the critical endgame of a world war? That's not something for today's uniformed defenders of our Constitution to aspire to.
And yet, the 1949 national security state model stands and expands today. War memoirs celebrate the efficiency of our march to Baghdad, our think tank wonks smile at NATO's good fortune in Libya, and our forward leaning war party debates attacking Iran in Syria, or on their home shores.
Just a few small observations on Capt. Mariner’s otherwise well thought out comment. Firstly, C2 problems are not so much more profound in limited wars but limited wars that are not going well. Korea, Vietnam, Lebanon, Somalia, Iraq2, and Afghanistan have been very troubled limited wars to one extent or another. Even the Korean conflict that turned out to be a grand success in retrospect had C2 issues that required a major controversial Presidential initiated change of command over the issue of insubordination at the highest level.
The second point is that while the German General Staff was much admired because it’s unparalled and demanding officer selection process that ‘institutionalized excellence’ it also contained some profound weaknesses just like the state that it served.
While the British or American approach to military affairs was probably less efficient than the German in attracting quality officer talent or the development of the operational art it was vastly superior in its connection to the ‘political nation’ in the context of the mobilization of the nation for large war.
However, by nature a contentious political system works differently in limited war where the unity of national mobilization is not necessary or even desired and where what is at stake is not absolutely clear to the nation. Our system encourages political friction and when merged with the normal military friction of the battlefield it makes for an unhappy mixture. Toss in the normal one-upmanship and jealousies among the armed services, the career ambitions of both politicians and an ambitious officer corps and you have, well, what we have now.
I have to respectfully disagree with you on this one. The Germans system may have had problems but it was far superior to ours at the time for producing good NCOs and Officers. While our system is set up so that the Civilians have final call if we go to war they should not be getting involved in the calls on the ground to either shoot or don't shoot, how the tactics are used or what tactics are used. They should have the vision for the overall long term strategy and that is it. Jimmy Carters was in direct comms operators with Operation Sundown, they attempted to institute ROEs on that same mission that would have doomed it from the start and political interference caused numerable problems and even delayed the capture or killing of UBL earlier on in the Afghan War. This has nothing to do with the limited wars we fight, most of it is due to the increased political mentality of the senior generals, the micromanagement of the military by the civilians and the micromanagement of the subordinates in the military by the senior leaders, it is cultural now. When combined with huge advances in technology the things that are supposed to increase effectiveness actually hinder us (the video I sent you guys with the subtitles about AOB's and VSOs is so accurate it is scary).
This is something we need to discourage not encourage in both our higher ups and in our civilian leadership as well. "Commanders Intent" is not just something that should flow from our Generals (it rarely does in reality), it is something that should flow from our civilians leaders as well. I will still lay the large part of the blame for this mentality at our senior leaders in the military, some are getting better about it but we will slide back again I am sure unless someone actually pushes for radical changes in the military culture of our GO's, something I don't see happening with the wonders I see such as the excitement over the "Diversity Report", "Uniform and Haircuts", a new PRT for the Army and Navy that has no upper body requirement, concentration on big ticket items over basic training for the troops, regulations that do nothing to increase effectiveness but do increase "safety", etc...etc... or as another example of micro-management to the extreme-the upcoming alcohol testing that will come in the mornings as we stroll in to work to ensure that we are somehow sober enough to actually work. These actions all combine to infantilize the troops and micromanage them to the point that they are automatons with little initiative or outside the box thinking. In short, I have said it once and I will say it again, we are an military of "Lions lead by Deer".
I really cannot recommend enough for some of the folks on here to read about why de-centralized command and the power of TRUE commanders intent is so important.
"The Enlightened Soldier", "Stormtroop Tactics", "Command or Control", "Maneuver Warfare (Lind), Fourth Generation Warfare series by Lind and "Frontsoldaten". I know they are German heavy but they trained their people from the bottom up, encouraged initiative to the extreme and trained their leaders properly all the way through the end of the war. As evil of a regime as they were they did a lot of things right in a few areas, we should take those as lessons learned no matter how foul of a source it came from.
I can't help wondering if much of the effort to set up American style command structures with one Supreme Commander at the top (be they joint, combined, Nato, whatever). I cannot help but wonder if the British love of committee style command structures might not have been better -- and more reflective of the real world. There does seem to be a lot to the argument that Britain had the most efficiently directed war effort ever in WWII -- and they were much more prone to consultive command structures than the US.
As a practical matter most of the great allied commanders had to run things with a fairly loose rein, and usually spent a lot of time thrashing things out, and working for a consensus. Maybe we should have (and should now) give up the pretense and go for war by committee. We've got the reality, maybe its time to drop the pretense.
Ms Mariner seems to take the view that civilians are allowed to declare and fund war and after that should just plain stay out of the way of the military. While the war's going on, civilians are just pests.
Quite a few of her generalities are challengeable: her account of the part played by the US force under non-US command during World War I seems fictional. Foreigners told Pershing what his force had to do in France and, efficiently, his force did it.
Her comment about the Gulf War bypasses any discussion of whether that war was a good idea, or even a moral or necessary one. That's not so clear, and its announced aim -- getting the Iraqi army out of Kuwait -- was achieved before the first shot was fired, and by civilians..GHW Bush, a brother in this to Ms mariner, obligingly stood aside so the army could then do its thang despite the evidence that this was no longer needed. That this was likely a bad idea was created by the seeming civilian need about a decade later to start yet one more unnecessary war against Iraq, Is there a third one in the offing? Let's hope not. Seems that the answer arises from who happens to be US president at the time, rather than real need.
KUNINO, I think you make a good point about Capt. Mariner’s remark about Pershing efforts to prevent the American forces being used as replacement ‘cannon fodder’. In fact, as a result of the German 1918 offensives he did allow American divisions and specialist medical and engineering troops to be assigned to both British and French commands to help stabilize the front.
This was done partly to give the very green American troops a blooding and also to demonstrate cooperation with the coalition when it was n a tight spot. He then would be in a stronger position to construct an all American army of maneuver on its own part of the front.
However, one thing I would take exception with was your comment that Pershing's army efficiently did its assigned tasks. In fact, the American experience on the western front in WW1 was extremely inefficient largely as a result of untrained staffs and a desperate shortage of support troops in favor of shipping combat troops to France. American officers took note and corrected this in the next go-around in 1942.
merican Expeditionary Force = replacement cannon fodder??
When meeting Pershing, Clemenceau reminded him that he had entered Richmond one week before Grant and the Union Army. If the French did not teach the Americans how to fight, the Germans most assuredly would. The only American weapon used in that war was the Springfield copied from the British Enfield. To state we were unprepared is an understatement. From something I wrote:
When speaking to an audience celebrating the 20th anniversary of the Armistice of World War I in 1938, George Marshall gave the listeners the caveat that he was presenting the problem of going to war from the aspect of the professional soldier. The General told the knowing audience of the American problem of unpreparedness. General Marshall mentioned the part the United States did play in the war was well known, but many blundering steps by America were not known to the general public. Painfully remembered by Marshall was sailing to Europe with the First Division in June, 1917 in the first convoy shortly after America declared war. Some 80 percent of the men in the ranks were recruits who got their rifles on the train between the Mexican border and Hoboken. Marshall admitted all the men were good Americans, but they were not soldiers.
The listeners were reminded from the day his ship landed in France on June 26, 1917 to September 12, 1918 when the American Army deployed in battle in divisional size, the Allies protected the American Army in the rear. American units did engage in some combat duty, but not in divisional size. American forces were protected on the field for a over a year while the vaunted American Army got ready. George Marshall thought Americans who were quick to remember Valley Forge and the American Revolution did not realize that in France of 1917 the American Army was in a similar situation. Marshall saw troops of the First Division without shoes and with feet wrapped in gunnysacks march 10 or 15 kilometers through ice or snow. The strength and sacrifice of the Allies held the enemy at bay for a year. This great effort enabled the fighting of battles which ended the war. David Lloyd George, British Prime Minister at war's end, in his memoirs remembered with deserving petulance the concession to General Pershing on maintaining American divisional formations and Pershing's refusal to merge American infantry with British force. Pershing relinquished American command temporarily only for training. Could Pershing have imagined the reaction of the British and French to having untried American formations fighting adjacent to their men while facing a formidable enemy like the Germans? Did he have much concern for the risk he was placing Allied troops under?
Lloyd George swore American troops in battalion strength had expressed satisfaction at suggestions of being incorporated into British formations. Moreover, he quoted Pershing writing at the end of February, 1918 of Pershing's disappointment at American progress and the possibility of having to stand by almost helplessly while the Allies were assaulted by the Germans and were suffering losses in the hundreds of thousands while struggling against defeat. Lloyd George noted a high proportion of American troops as of February 28, 1918 were non-combatants and the rest were poorly trained.
The acerbic Thorsten Veblen attributed any utterances by the patriotic types as to how America won the war in Europe as "stage bravery". Professor Veblen attributed the puerile blood lust of Americans to dementia praecox, an affliction of distemper of early manhood. Prince Max, cousin of Kaiser Wilhelm, observed the American war machine started with much publicity, but very slowly for Americans with their false pretense felt the only way they could learn was not by the mistakes of their Allies, but only by bitter experiences of their own. The cold fact was that America did not get an army into the field until 17 months after declaring war, and the American army only fought as an integral unit for all of two months. During the Second World War Churchill's scientific advisor Professor F.A. Lindemann reminded George Marshall that America had to fight knowing that British losses during World War I had severely affected their ability to fight.
You make many good points in your comment that the American public were really not interested in hearing. Fortunately, good officers like Marshall were realists and between the wars with scarce resources attempted to correct many of the problems experienced in doctrine, training and organization if only on paper. They were largely successful in implementing those ideas twenty years later.
The Enfield M1917 not the Springfield was copied from the British Pattern 1913 Enfield and proved to be considerably more durable and as accurate as the Springfield M1903. Since the rifle was already in production at Winchester and Remington for British contract it made sense to convert it to the U.S. .30 Govt. and mass-produce it for U. S. troops. The mistake at the end of the war was to retain the Springfield as standard issue only because it was an American design and made at U. S. arsenals.
During the war the British FM Alanbrook often said that the tremendous casualties of British officers in the First World War damaged the pool of officer talent for the Second. No doubt the casualties were in fact massive but no worse as a percentage than German officer casualties. Yet in WW2 the Germans produced the most outstanding tactical and operational talent of the war. The real answer to British difficulties was an institutional debility in officer selection, training, innovation, doctrine and experimentation. Add to that a complete lack of funding.
You make many good points in your comment that the American public were really not interested in hearing. Fortunately, good officers like Marshall were realists and between the wars with scarce resources attempted to correct many of the problems experienced in doctrine, training and organization if only on paper. They were largely successful in implementing those ideas twenty years later.
The Enfield M1917 not the Springfield was copied from the British Pattern 1913 Enfield and proved to be considerably more durable and as accurate as the Springfield M1903. Since the rifle was already in production at Winchester and Remington for British contract it made sense to convert it to the U.S. .30 Govt. and mass-produce it for U. S. troops. The mistake at the end of the war was to retain the Springfield as standard issue only because it was an American design and made at U. S. arsenals.
During the war the British FM Alanbrook often said that the tremendous casualties of British officers in the First World War damaged the pool of officer talent for the Second. No doubt the casualties were in fact massive but no worse as a percentage than German officer casualties. Yet in WW2 the Germans produced the most outstanding tactical and operational talent of the war. The real answer to British difficulties was an institutional debility in officer selection, training, innovation, doctrine and experimentation. Add to that a complete lack of funding.
TECHNOLOGY AND THE ABILITY, DE FACTO, TO JUMP THE CHAIN OF COMMA
We have talked about this a lot, but it bears repreating. Technology has given people at much higher headquarters not to monitor small combat actions thousands of miles away, but it has given them veto powers over decisions normally made at the O-3 level and below. Theose making these decisions often lack context and subject matter expertise to make these judgements.
An example which may not be completely accurate was that a SEAL sniper team in Afghanistan, early in the war, had a tall man in a white robe in their sights. It was nighttime and there was an intervening valley. Supposedly they had to ask permission to shoot because they thought it was UBL. It had to go all the way back to the NSC and perhaps the NCA. By the time the decision was made, it was too late, he had gone back into the cave. However, the decision was: permission denied. Why? The people in Washington thought that it was too dangerous for such a small SEAL element.
Surely that was for the SEALs onsite to determine with their expertise and appreciation of the situation. This may have all started with the Naval Blockade during the Cuban Missile Crisis. At the point when the destroyer Joseph Kennedy was to make the first stop of a Russian ship, President Kennedy wanted to talk directly to the captain of the Kennedy. They patched him through via telephone and radio. Amongst other things, he wanted to make sure that if there was any gunfire, it was to be at his order only. After hearing some of the bellicose statements from the Joint Chiefs, he did not trust anyone with their finger on the trigger. His desire was understandable.
It is also understandable that President Obama reserved to himself the decision concerning when the backup helicopters could cross the Pakistani border. Allegedly, he was less conservative than the mission commander thought he would be and had the CH-47s cross and wait inside Pakistan for quicker response.
At TORA BORA, the demands for updates by staff weenies at SOCOM and CENTCOM were so frequent that the satellite channels became jammed with traffic and C&C within Afghanistan next to impossible. The NSA CEOI should have ensured that those staffs were on simplex, receive only status. It happened again in Operation ANACONDA.
I realize that Captain Mariner is pitching this at the civi/military command level, but I think that technology itself affects how C2 will be implemented and whether it will be adhered to.
Now tell me, how could someone with the superb nautical name of Mariner not be made an Admiral by the Navy? Admiral Mariner sounds great.
Good to see old friend Captain Mariner once again in the lists. Great to see her capture of the topic in simple terms. Spot on.
To which would add that military leaders tend to go astray when they think of themselves as high priests instead of hired guns. And would note such arrogant thought seems intrinsic to the AVF concept...
"We're special!"
No you ain't. Shut up and do your job.
Not the way it is Ducky, I wish you were right even a little but if anything our GOs take whatever S**t Sandwich they are given and eat it with great relish, no matter how badly it effects combat effectiveness or the troops as long as they keep their positions. There are the rare exceptions who would rather resign than carry out orders that they do not believe in but for the most part the Officers who make 06 and above did not get their through being innovative, outside the box thinkers who speak up when somethings wrong and rock the boat.
Guess that leaves the two of us...
Dumb and dumber.
I wasn't going to say it, but the photo of these two clowns spoon feeding known and known unknown shit to a room of press just ruined a rather nice sunny day.
Rosemary was the first female tailhook aviator...
http://en.wikipedia.org/wiki/Rosemary_Bryant_Mariner
My Navy did not have, back in Rosemary's day and mine, much willingness to promote feisty women. Thus Rosemary ... and Betsy Wylie ... and Kathy Bruyere ... and Lori Manning ... and many others at the forefront of gender equality in the US Navy got topped out at O-6. It was the cohort following that benefitted ... and the Navy ... and the nation.
The thing i find the most interesting is that for all the admiration the Prussian/German staff structure gets it was relatively glaringly incapable of winning a major modern war while the complicated imperfect systems of the allies functioned well enough.
It seems the Germans always got their tactics right and their strategy wrong (granted the two world wars might not be a great example given the numerical and logistical imbalances, then again, strategy should account for those).
.
I wonder if on some level this is not a "civilian control of the military" phenomenon where it is more possible to subvert immediate military preferences to larger political goals when you don't have a general (whose ego and reputation are at stake) making final decisions. I suppose the trick would be finding a way to merge the two systems.
FBRAUN, you are precisely correct. German excellence at 'fighting war' was largely offset by a general strategic incompetence enhanced by political systems that worked against a realistic rationalization of goals and objectives contrasted with capability and resources. This was profound in both the First and Second World Wars.
I think that is a good way to look at it
The Political System of the Germans still drove strategy far to often, this caused them endless "lost victories". I am quite glad they did though since it might have been a much longer war if they did not, our industry, sheer numbers and the geography still would have won the day eventually but I think the war might have been much longer. Who knows, maybe we would have ended up having to use an atomic bomb on them to shorten the war?
It hardly makes much sense to criticize the Prussian (i.e., German) general staff because it didn't prevail after "the complicated imperfect systems of the allies functioned well enough" -- which overlooks the fact that this period of improved system function benefited from the fact that the German military were engaged mainly in surviving the heroic Soviet sweep forward on the eastern front at the time. OKW records captured after the war showed that to the German high command, Italy and Normandy were virtually sideshows for which there were always grievously few resources.
The German high command didn't want to attack the Soviet Union. A former corporal did, and by reason of his democratic victory to lead the German government -- and from that position, order his military into virtually any action that interested him. So we're back into issues arising from civilian control of the military, rather than a failure of military command. That problem is never going to vanish, so long as there are civilian governments. Of course, when there's a coup, and as a result, no civilian government any more ... .
The thing i find the most interesting is that for all the admiration the Prussian/German staff structure gets it was relatively glaringly incapable of winning a major modern war while the complicated imperfect systems of the allies functioned well enough.
It seems the Germans always got their tactics right and their strategy wrong (granted the two world wars might not be a great example given the numerical and logistical imbalances, then again, strategy should account for those).
.
I wonder if on some level this is not a "civilian control of the military" phenomenon where it is more possible to subvert immediate military preferences to larger political goals when you don't have a general (whose ego and reputation are at stake) making final decisions. I suppose the trick would be finding a way to merge the two systems.
sorry about that, not sure it had submitted so i hit the button again, apparently it had, stupid system
A blog where you have to SEARCH for new posts and have no idea what time it is. There are so many less prestigious blogs which email you when there is a new post on a selected subject and which know the correct time. I think that the talent is there, but the Post must not allocate adequate funds to IT. But then, the Post's website isn't great either - poor organization and appearance.
The German high command didn't want to attack the Soviet Union. A former corporal did, and by reason of his democratic victory to lead the German government -- and from that position, order his military into virtually any action that interested him. So we're back into issues arising from civilian healthdebts control of the military, rather than a failure of military command. That problem is never going to vanish, so long as there are civilian governments. Of course, when there's a coup, and as a result, no civilian government any more.
(25)
HIDE COMMENTS LOGIN OR REGISTER REPORT ABUSE